Clusters are individuals - VDI/VDE-IT

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• Different types of cluster programs service different purposes: regional economic development, development of national industries, commercial exploitation of R&D results and promotion of networking are general categories cluster programs can be grouped in; • Most cluster programs feature high on the government’s agenda; • Coordination of cluster programs with other public support programs shows room for improvement; • Internationalization of clusters is considered to be important, but the relevance of supporting internationalization of clusters varies between the different programs; • Program owners take over a more proactive role towards developing individual clusters; • Cluster Management Excellence has become more and more important in recent years; • Monitoring and evaluation is important. Assessment of the impact on business is difficult, but not impossible. International best practice is presented. The report presents lessons learned by program owners and a unique detailed overview of 16 European cluster programs. Finally, the main elements of a perfect cluster program with regard to its overall strategic set up, target group, instruments and implementation are introduced. The report provides eight policy recommendations for future developments of cluster programs. The recommendations shall contribute to the evolution of outstanding “world class” clusters that are driven by excellent cluster management organizations: • Improve coordination of cluster programs and other relevant funding programs; • Tailor-made assistance for clusters should have a high relevance in the program strategy; • Programs should put emphasis on cluster management excellence; • Cluster programs should develop world-class clusters in industry sectors that are internationally competitive; • Long-term, but flexible support of clusters is required; • Monitoring and evaluation of the results and impacts of a program is important and should be done in a smart and purposeful manner; • Technical assistance instruments are important for the promotion of international activities of clusters; • Different industry sectors need different support for internationalization activities. 9
1. INTRODUCTION In economic and innovation policy the term „cluster“ is usually used to explain geographical concentrations of economic and innovation activities. According to Michael E. Porter “clusters are geographic concentrations of interconnected companies and institutions in a particular field” 1 that collaborate and compete at the same time. According to this conventional wisdom clusters support economic development through the specialization of regions in activities within which companies can gain higher productivity through accessing external economies of scale or other comparative advantages. 2 Throughout the past 15 years clusters have gained more and more importance as an element of economic development and innovation strategies of the European Union and its Member States. Owing to dedicated cluster policies of Member States, particularly since the end of the 1990s, an increasing number of business initiatives or top-class universities and research institutes have been instrumental in the emergence of strong clusters by acting as a catalyst and helping to unleash the economic and scientific potential of particular regions. However, the development of corresponding policies is still an early stage, but it has gained momentum. 3 The European Union highlights the relevance of clusters for maintaining and further developing the global competitiveness of the European economy. In 2006 the EU adopted its broad-based innovation strategy and identified clusters as one of the nine strategic priorities for successfully promoting innovation. 4 The analyses in this report challenge the conventional wisdom of what drives economic development and innovation activities within a cluster. Based on the largest international analysis of its kind involving a simultaneous benchmarking of more than 140 cluster organisations and of cluster policies from nine European countries it is found that the economic impacts of clusters depend on many factors not related to the specialization of regions through the geographical concentration of the cluster. Cluster management excellence and the spectrum and frequency of business-related services of the cluster organization are important determinants for the impact of a cluster. The analyses of cluster organisations and cluster policies also show many other determinants for the development and characteristics of a cluster. In the absence of a widely accepted definition of cluster policy Christian Ketels defines cluster policy as all efforts by 1 Michael E. Porter, 1998: Clusters and the New Economics of Competition, in: Harvard Busi ness Review, November 1998, p. 78 2 OECD, 2009: Clusters, Innovation and Entrepreneurship, p. 26 3 Communication from the Commission to the Council, the European Parliament, the Euro pean Economic and Social Committee and the Committee of the Regions: Towards world- class clusters in the European Union: Implementing the broad-based innovation strategy, COM (2008) 652 of 17.10.2008, http://ec.europa.eu/enterprise/policies/innovation/policy/clusters/, p. 3 4 Ibid., p. 2 governments, alone or in collaboration with companies, universities and others that are aimed at enhancing the competitiveness of clusters. 5 This broad definition goes beyond cluster funding programs and includes also policy measures from other areas, such as tax and labor policies. Cluster policy has be understood, planned and implemented as a structural policy that changes the behavior of companies and institutions. In this respect there are two opposing academic understandings of cluster policy: One approach sees geographic concentrations as the key policy lever. In this understanding increased competitiveness will follow the geographic concentration of relevant actors. Policy interventions should therefore be focused on making a region attractive for companies, e.g. through tax rebates or free infrastructure. Another approach sees competitiveness as the key policy lever. In this understanding increased competitiveness will result in the geographic concentration of relevant actors as the cluster becomes more attractive for new stakeholders. Policy interventions should therefore be targeted on geographic concentrations that have already passed the early stages of development. As in these environments the fundamental conditions for economic success are in place, collaboration between relevant stakeholders should be supported through policy interventions, e.g. funding. 6 In order to facilitate the discussion about cluster policy through further insights into the characteristics of clusters and cluster policy intervention, the Danish Ministry of Science, Technology and Innovation, supported by the German Federal Ministry of Economics and Technology and its national cluster program “Initiative Kompetenznetze Deutschland”, the Nordic Council of Ministers and the Nordic Innovation Centre (NICe), has initiated the project „NGPExcellence – Cluster Excellence in the Nordic Countries, Germany and Poland“. The overall objective of this project is to contribute to the development of outstanding clusters through excellent management and excellent cluster programs. Further partners in this project were VINNOVA (Sweden), Tillväxtverket (Sweden), the Finnish Funding Agency for Technology and Innovation (TEKES), the Finnish Ministry of Employment and the Economy, Innovation Norway, the Icelandic Centre for Research (RANNIS), Innovation Centre Iceland, the Bavarian Ministry of Economic Affairs, Infrastructure, Transport and Technology (Germany) and the Polish Agency for Enterprise Development (PARP). The objective of this project is aligned with the work of the European Cluster Policy Group that was formed by the Eu- 5 Christian Ketels, 2010: Cluster Policy: A Guide to the State of the Debate, in: Knowledge and 6 Ibid. Economy, Springer Publishing, forthcoming 10
Page 1 and 2: CLUSTERS ARE INDIVIDUALS NGP NGP Cl
Page 3 and 4: CLUSTERS ARE INDIVIDUALS CREATING E
Page 5 and 6: TABLE OF CONTENTS EXECUTIVE SUMMARY
Page 7 and 8: INDEX OF TABLES Table 1: Benchmarki
Page 9: EXECUTIVE SUMMARY In economic and i
Page 13 and 14: There is an emerging consensus that
Page 15 and 16: DIMENSIONS INDICATORS Age of the cl
Page 17 and 18: 2. RESULTS OF THE BENCHMARKING OF C
Page 19 and 20: 2.2 CHARACTERISTICS OF CLUSTER MANA
Page 21 and 22: these clusters since the establishm
Page 23 and 24: 2.2.5 FINANCING OF CLUSTER MANAGEME
Page 25 and 26: Age Share of clusters having initia
Page 27 and 28: Share of clusters with high appeara
Page 29 and 30: 2.3.4 THE CHARACTERISTICS OF A CLUS
Page 31 and 32: Against the backdrop of the other k
Page 33 and 34: 3. RESULTS OF THE BENCHMARKING OF C
Page 35 and 36: 3.2 CHARACTERISTICS OF CLUSTER PR0G
Page 37 and 38: NAME OF THE PROGRAM ESTABLISHMENT O
Page 39 and 40: Cluster Offensive Bayern No Yes No
Page 41 and 42: and regular meetings between progra
Page 43 and 44: REGIONAL CLUSTER PROGRAM OSKE - CEN
Page 45 and 46: 3.3 KEY FINDINGS The benchmarking o
Page 47 and 48: ment through Competence Networks Ge
Page 49 and 50: 3.3.4 INTERNATIONALIZATION OF CLUST
Page 51 and 52: Programs that attach high relevance
Page 53 and 54: The rationale behind a more active,
Page 55 and 56: tool to support the further develop
Page 57 and 58: implementation) the following princ
Page 59 and 60: 4. POLICY RECOMMENDATIONS Clusters
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THE AUTHORS THOMAS LÄMMER-GAMP is
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1. INTRODUCTION The benchmarking of
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2.1.1.3 Term of the Program, Financ
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INDICATORS Output Results Impact
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2.2.2 ZENTRALES INNOVATIONSPROGRAMM
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2.2.2.4 Instruments ZIM-NEMO provid
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2.2.3 CLUSTER OFFENSIVE BAYERN (BAV
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2.2.3.4 Instruments The key element
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With R&D programs 4 3 2 1 0 With bu
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Coordination of activities through
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2.3 NORWAY 2.3.1 NORWEGIAN CENTRES
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2.3.1.6 Monitoring and evaluation s
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Norway (SIVA) and the Research Coun
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2.3.2.4 Instruments Support for the
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How important is the cluster progra
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2.4.1.6 Monitoring and evaluation s
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2.4.2 REGIONALT KLUSTERPROGRAM (REG
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manner. Companies that were partner
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2.5 FINLAND 2.5.1 THE CENTRE OF EXP
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Competence Cluster Centre of Expert
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environments in order to lure inter
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The coordination of the program wit
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organizations. Technology, service
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2.6.1.4 Instruments The program pro
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The program provides grant funding
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2.7 POLAND 2.7.1 POLISH CLUSTER SUP
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Name of the program Operational Pro
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2.8 FRANCE 2.8.1 GRAPPE D’ENTREPR
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How important is the cluster progra
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